Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021

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Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Public Park at the Upper Harbor Terminal
Concept Plan
Draft

Fall 2021
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Acknowledgements                                                                                          Table of Contents

MPRB Park Community Advisory Committee               Collaborators                                           Introduction                                    5
                                                                                                              Land and Community Acknowledgement             6
Members                                              City of Minneapolis: Erik Hansen, Hilary Holmes,
                                                                                                              Purpose and Intent of Concept Plan Document    8
                                                     Ann Calvert, Hilary Dvorak, Nathan Koster,
Robin Lewis, Chair                                                                                            Relationship to Other Plans                    9
                                                     Alexander Kado, Ahmed Omer, Shauen Pearce,
Ben Oswald, Michelle Shaw, Teqen Zéa-Aida, Eva       Kelly Muellman                                           Upper Harbor Terminal Site                     10

Bailey, Tom Dunnwald, Alexis Pennie, Aric Arneson,
                                                     Mississippi Watershed Management
Colleen O’Connor Toberman, Jennifer Webb,                                                                    Planning Process                                15
                                                     Organization:
Brandon Burbach, Georgianna Yantos, Sue Pilarski                                                              Park Planning Process Timeline                 16
                                                     Dan Kalmon, Bruce Jacobson, Brett Eidem
Former Members: Mysnikol Miller (Vice-Chair),                                                                 Engagement Approach                            16
                                                     United Properties: Brandon Champeau,
Adam Cameron, Jamey Erickson                                                                                  Community Advisory Committee                   17
                                                     Tom Strohm
                                                                                                              Community Build                                20
Project Team                                         First Avenue Productions: Dayna Frank
                                                     Pillsbury United Communities and Public Policy          Project Vision                                  23
MPRB: Julie Aldrich, Emma Pachuta, Kate Lamers,      Project: DeVon Nolen, James Trice                        The Promise and Challenge of New Parkland      23
Crystal Passi, Francisca Pass
                                                                                                              Values                                         26
Perkins&Will: John Slack, Vanessa Eickhoff
                                                                                                              Program Model                                  34
                                                     Members and attendees of the Above the Falls
Agency Landscape & Planning: Gina Ford,                                                                       Park Design Principles                         36
                                                     Community Advisory Committee
Matthew Macchietto, Susannah Ross
Barr Engineering: Nathan Campeau,                    City of Minneapolis’ Upper Harbor Terminal              Park Design Concept                             39
Michelle Kimble                                                                                               Full Park at UHT                               39
                                                     Collaborative Planning Committee (UHT CPC)
Toole Design Group: Ciara Schlichting                                                                         Primary Park Features                          40
                                                     Green Zone Task Force Members                            River Corridor Restoration                     51
106 Group: Saleh Miller, Erin Que
                                                                                                              Dakota and Indigenous Connections              57
Juxtaposition Arts: Sam Ero-Phillps, Niko Kubota,    Neighborhood Group Participants
                                                                                                              Planning for Evolution                         60
Kristen Murray, Roxxanne O’Brien, Robbie Seltzer,
Community Design Studio Teaching Artists and                                                                  Land Use Coordination                          61
                                                     Countless public participants who attended
Youth Apprentices, 2017-2021
                                                     meetings, stopped at events, answered surveys,
                                                                                                             Operations and Maintenance                      65
The Musicant Group: Max Musicant, Ella Rasp          sent emails or letters, made phone calls, talked
                                                                                                              Capacity Building                              65
Project for Public Spaces: Priti Patel               with neighbors, answered doors, toured the site,
                                                                                                              Operations and Maintenance Cost Implications   71
                                                     and contributed their wisdom, insight, and time to
Healing Place Collaborative: Denise Nelson,
Ethan Neerdaels                                      their community.
                                                                                                             Implementation                                  73
Minneapolis Parks Foundation: Paul Bauknight         And thank you to all the participants yet to come        Opportunities for Investment                   74
MPRB Teen Teamworks 2021                             as engagement will continue as the park is built         Prototyping Products and Methods               76
                                                     and the vision is realized.                              Park Programming                               78

                                                                                                              Budget: Current                                80
                                                     All quotes were used with permission from
                                                                                                              Amending this Plan                             81
                                                     community members; however inclusion does not
                                                     indicate endorsement of the entire plan.
                                                                                                              Appendix
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Introduction

    This document expresses the park program and conceptual design for
    19.5 acres of new Mississippi Riverfront parkland at the Upper Harbor
    Terminal (UHT) in north Minneapolis. Dedication of this new parkland will
    be the largest single addition of land to the Minneapolis park system in
    decades. With a mile of riverfront in what has been a heavy industrial
    zone of the city, this new parkland will be a substantial contribution to the
    broader vision of transforming the riverfront through North and Northeast
    Minneapolis from private to public.

    Parkland proposed for UHT is within the park boundary of the Above the
    Falls Regional Park; the newest regional park under the jurisdiction of the
    Minneapolis Park & Recreation Board (MPRB). The master plan for Above
    the Falls calls for methodically purchasing properties necessary to establish
    the adopted park boundary on both sides of the river and, as funds allow,
    develop parks and programming to create an interconnected park, trail
    and parkway experience for north and northeast Minneapolis residents.

    The parkland at UHT is in an area poised for change. The industrial land
    uses between I-94 and the Mississippi River will inevitably transform in
    coming decades as the city grows and evolves, the MPRB has already
    acquired other properties or parkland creation near UHT and, the UHT
    property itself is transforming from a City of Minneapolis industrial terminal
    to a mixed-use redevelopment district.

    The several-year, community process to conceptualize parkland at UHT
    has been a case study for how to position parks as a tool for good in
    addressing vital topics of gentrification, racial equity and the creation
    of welcoming public space for all. As the planning process unfolded the
    COVID-19 pandemic hit, uprisings for racial injustice emerged and tragic
    events of climate crisis were headlines. These society-altering conditions
    highlighted, even more, the urgency to create multi-dimensional parks of
    service to very real community needs.

    This mile of new parkland at UHT presents opportunities to ponder and
    address deep questions about the responsibility of parks. The results are no
    doubt imperfect but hopefully make positive strides and are positioned to
    allow for continued evolution and improvement.

4                                                                                    5
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Introduction

Land and Community Acknowledgement                                                                                                                               North Minneapolis

                                                                                                                                                                 North Minneapolis, generally defined for this project as the area
                                                                                                                                                                 north of I-394 and west of the Mississippi River, is home to the                       The park at the UHT should be
                                                                                                                                                                 most people of color by sector in the city. Currently 69.9% people                     for all community members
                                                                                                                                                                 of color, the Northside has historically been an area with lower                       and all Northside residents but
                                                                                                                                                                 access to wealth and opportunity; much of the land area is                             must also acknowledge that
                                                                                                                                                                 covered by areas of concentrated poverty (ACP50s). For decades
                                                                                                                                                                                                                                                        American Descendants of
                                                                                                                                                                 it was one of the few places African-American people could
                                                                                                                                                                 own homes and businesses. Through the early and mid-1900’s,                            Slavery (ADOS), Dakota, and
                                                                                                                                                                 the MPRB used park acquisition and development funding tools                           Black, Indigenous, and People
                                                                                                                                                                 including the Elwell Law that assessed costs to area property                          of Color (BIPOC) have dealt
                                                                                                                                                                 owners. While this practice expanded park investments across                           with the greatest burdens of
                                                                                                                                                                 the city as a whole, it led to inherent inequities in park investment
                                                                                                                                                                                                                                                        structural racism,
                                                                                                                                                                 with wealthier and/or more willing parts of the city gaining more
                                                                                                                                                                 park amenities. This history in park investment combined with                          disinvestment, and
                                                                                                                                                                 other non-park activities including racially-restrictive covenants,                    environmental injustice. In this
                                                                                                                                                                 red-lining, construction of I-94, and predatory lending have left                      document, the term Northside
                                                                                                                                                                 a legacy of damage and unequal investment in poorer areas                              residents or community
                                                                                                                                                                 of the city.
                                                                                                                                                                                                                                                        members is intended to be
                                                                                                                                                                                                                                                        broadly inclusive, but to
                                                                                                                                                                 “Of all the parks in Minnesota, I can’t think of
                                                                                                                                                                                                                                                        emphasize these groups.
                                                                    Map courtesy of Dakota Goodhouse, Standing Rock Sioux Tribe                                  one that is a Black Space. It is time to make one.”
Dakota Land
                                                                                                                                                                                   ―BLACK OUTDOOR AND ACTIVE LIVING ADVOCATE
As an agency, MPRB is seeking to build a culture and practice of         Mnisóta Makhóčhe (Minnesota)
land acknowledgment. The 2021 Comprehensive Plan process                 is the homeland of the Dakota
(in draft form at the time that this document is posted) included        people. The Dakota have lived
research and engagement on how to lift and support Indigenous            here for many thousands of                                                                                                                                                                      Minneapolis
voices in everyday work, throughout the agency and across
                                                                         years. Anishinaabe people                                                                100%
disciplines.                                                                                                                                                                                                                                                             North
                                                                         reside here, too, and reached

                                                                                                                                  Percentage of the Population
“It is important to acknowledge that we are on

                                                                                                                                                                                                                    67.7%
                                                                         their current homelands after                                                             75%

Dakota land, but also to acknowledge that a                              following the megis shell to
statement that is not followed by action is                              the food that grows on water

                                                                                                                                                                         420,324
                                                                                                                                                                   50%

                                                                                                                                                                                                            36.4%
                                                                         (manoomin, or wild rice).

                                                                                                                                                                                                    31.4%
either meaningless or harmful.”
                                                                         Indigenous people from other

                                                                                                                                                                                                                                                 27%
                                                                                                                                                                                                                                  26%
                                                                                                                                                                                            19.8%

                                                                                                                                                                                                                            22%

                                                                                                                                                                                                                                         19.1%
                                                                                                                                                                                   66,558

                                                                                                                                                                                                                                                          13.2%
          ―DEVELOPED WITH DAKOTA COMMUNITY MEMBERS                       Tribal nations also reside in                                                             25%

                                                                                                                                                                                                                                                                  15%
Many of the larger strategies and efforts are much broader than          Minnesota and have made
any individual project, but clearly each project and process can         innumerable contributions to
                                                                                                                                                                           Total              Under 18      People Of       Language       Income           Public
contribute to system wide goals. Although these goals are still          our region.                                                                                     Population                           Color         Other Than      Below       Transportation
                                                                                                                                                                                                                              English    Poverty Line
in development, staff have evaluated how the UHT project can
address input from the Comprehensive Plan work and other                             ‒Excerpt from The Land We’re On
                                                                                      by the Native Governance Center
projects in addition to the UHT.
      6                                                                                                                                                                                                                                                                                7
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Introduction

Purpose and Intent of the Concept Plan Document                                                                      Relationship to Other Plans

The following park concept design document is the result of   1. The Introduction provides an                       The Upper Harbor Terminal has been studied as a part of many other plans over the last two decades.
years of engagement and work. Although there are some            overview of the process, the                       Below are companion plans to this document that are critical in order to understand the full UHT project.
                                                                 document, and context for the
key recommendations for park operations, staffing, and                                                              Many other documents, plans, and frameworks that have informed this plan including engagement
                                                                 project
programming, the main objective of the planning process                                                             plans, technical studies, cultural contextual studies, and park area master plans are referenced in the
                                                              2. The Planning Process summarizes
was to guide physical park improvements.                                                                            appendix.
                                                                 how MPRB arrived at this plan
Specifically, this document is intended to:                      through community engagement,
                                                                                                                                                                                                                                                                                                                    Upper Harbor Terminal Public Art Master Plan
                                                                 study and research, and technical
   nj Define the general location and amenities of park           analysis
     improvements                                                                                                                                                                                                                                                                                                   “All should be welcome at the UHT park, but it needs to be
                                                              3. The Project Vision is a look at the                                                                                                                                                                                                                a Northside space. Everyone should know that they are on
   nj Document and communicate the process and                    key themes that arose out of the
     findings that led to these recommendations                                                                                                                                                                                                                                                                     the Northside, and Northsiders should know that this is a
                                                                 planning process
                                                                                                                                                                                                                                                                                                                    place for them”
   nj Articulate key philosophies and ideas that can           4. The Park Concept Design                                                                                                                                                                                                                                                        ―COMMUNITY ADVISORY COMMITTEE MEMBER
     contribute to future park choices                           summarizes the priority park
   nj Set a framework for collaboration with outside              principles and the physical park                                                                                                                                                                                                                   Juxtaposition Arts (JXTA) played in important role throughout the UHT
     partners to support the goals identified                    design to support them                                                                                                                                                                                                                             park planning. Over several years the team led extensive engagement
                                                                                                                                                                                                                                                                                                                    efforts, participated in programming, planning, and design, and
                                                              5. The Operations and Maintenance
This document is divided into six parts. The Introduction                                                                                                                                                                                                                                                           provided valuable insight and leadership. As the planning team
                                                                 section outlines recommendations
and Planning Process document the process, the Project           for park staffing, programing, and                                                                                                                                                                                                                 transitioned from broad engagement, to a compiling and addressing
                                                                 care.                                                                                                                                                                                                                                              the many comments collected, it became apparent that the project
Vision and the Park Concept Design sections are staff
                                                                                                                                                                                                                                                                                                                    needed a specific interpretive effort. In the Public Art Master Plan,
recommendations for Board approval and to guide policy,       6. The Implementation pages provide
                                                                                                                                                                                                                                                                                                                    which is part of the park concept planning work, JXTA defined the key
and the Operations and Maintenance and Implementation            guidance for the first phase of the
                                                                                                                                                                                                                                                                                                                    Northside storylines and recommended strategies for implementation.
                                                                 park and future park decisions
Sections provide guidance for staff planning.

                                                                                                                         DEVELO
                                                                                                                               PMENT
                                                                                                                                     OVERVIE
                                                                                                                                            W
                                                                                                                                 Manufac
                                                                                                                                         turin
                                                                                                                                 & Processi g, Producti
                                                                                                                                           ng           on
                                                                                                                                                                                                                                                                                                                    Upper Harbor Terminal Coordinated Plan
                                                                                                                                                   Urban Foo
                                                                                                                                                   Processi d Production &
                                                                                                                                                           ng
                                                                                                                                                                                                                              Future
                                                                                                                                                                                                      Future                         Housing
                                                                                                                                                                                                             Flexibili       Parking         with

                                                                                                                                                                                                                                                                                                                    Approximately half of the 48 acres at the UHT is to be public park,
                                                                                                                                                                                       Health                         ty             Ramp and District
                                                                                                                                                                                                                             Commer                                               Park
                                                                                                                                                                                       Wellnes
                                                                                                                                                                                              &                                      cial Spa Ground Floor
                                                                                                                                                                                              s Hub                                          ce

                                                                                                                                              Commun
                                                                                                                                                       ity
                                                                                                                                             Perform

                                                                                                                                                                                                                                                                                                                    the remaining land will be either development parcels or City of
                                                                                                                                                      ing Arts
                                                                                                                                             Center
                                                                                                                                                    (CPAC)

                                                                                                                                                                                                                                                 Mixed-In
                                                                                                                                                                                                                                                         come, Affo

                                                                                                                                                                                                                                                                                                                    Minneapolis public Right-of-Way. City of Minneapolis Community
                                                                                                                                                                                                                                                with Gro
                                                                                                                                                                                                                                                        und Floo rdable Housing
                                                                                                                                                                                                                                                Space           r Commer
                                                                                                                                                                                      Park                                                                              cial

                                                                                                           19.5                                                                                    Mixed-In                                                                                 Senior
                                                                                                                             $500K-1M
                                                                                                                                                                                                                                                                                                                    Planning and Economic Development and Public Works Departments
                                                                                                                                                                                                            come, Affo                                                                                 Housing
                                                                                                        Acres of                                                                                  for Fam
                                                                                                                 New                                                                                      ilies with rdable Housing
                                                                                                       Riverfro                                                                                   Commer             Ground
                                                                                                               nt Park      Annual reve
                                                                                                                           commun nue to                         520                                       cial Spa
                                                                                                                                                                                                                    ce
                                                                                                                                                                                                                            Floor

                                                                                                                           generat
                                                                                                                                     ity entity,
                                                                                                                                    ed by Firs
                                                                                                                                                       Proposed
                                                                                                                                                                Housing              300
                                                                                                                          Ave tick
                                                                                                                                   eted eve
                                                                                                                                              t             Units               Estimated                Health &

                                                                                                                                                                                                                                                                                                                    have led collaborative planning processes in partnership with the
                                                                                                                                            nts                                           Livin
                                                                                                                                                                                  Wage Job g
                                                                                                                                                                                            s            Wellness                     45,000
                                                                                                                                                                                                        Commun
                                                                                                                                                                                                                   ity Hub
                                                                                                                                                                                                                                   Sq. Ft. Gro
                                                                                                                                                                                                                                               und
                                                                                                                                                                                                                                      Commer Floor
                                                                                                                                                                                                                                                               1,200
                                                                                                                                                                                                                                   Commun cial/
                                                                                                                                                                                                                                             ity Space
                                                                                                                                                                                                                                                              Estimated
                                                                                                                                                                                                                                                           Constru
                                                                                                                                                                                                                                                                                          $302M
                                                                                                                                                                       UPPER                                                                                       ction Job             Estimated
                                                                                                                                                                             HARBOR

                                                                                                                                                                                                                                                                                                                    City’s Upper Harbor Terminal Collaborative Planning Committee,
                                                                                                                                                                                    | COORDI                                                                   Created       s       Develop
                                                                                                                                                                                            NATED                                                                                            men
                                                                                                                                                                                                  DEV   ELOPME                                                                          *Does not        t Cost
                                                                                                                                                                                                               NT   PLAN (DR                                                        infrastructu include City
                                                                                                                                                                                                                            AFT)                                                                re and Park
                                                                                                                                                                                                                                                                                                            costs

                                                                                                                                                                                                                                                                                                    11

                                                                                                                                                                                                                                                                                                                    and the development team to create the Coordinated Plan. The
                                                                                                                                                                                                                                                                                                                    Coordinated Plan includes strategies and commitment to mitigate
                                                                                                                                                                                                                                                                                                                    and disrupt gentrification and displacement and increase access to
                                                                                                                                                                                                                                                                                                                    the site, i.e. community housing preference, City retaining the land
                                                                                                                                                                                                                                                                                                                    in public ownership, targeting housing at Northside incomes, job
                                                                                                                                                                                                                                                                                                                    preferences for Northside residents, physical improvements to access
                                                                                                                                                                                                                                                                                                                    the site, etc.

      8                                                                                                                                                                                                                                                                                                                                                                          9
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Introduction

Upper Harbor Terminal Site                                                                             Site Context

                                                  Site History

                                                  For millennia the land along the Mississippi River
                                                  was a travel way within the land of the Dakota
                                                  where many different Indigenous Nations and
                                                  people met. After Euro-American colonization
                                                  and the creation of the currently known City of
                                                  Minneapolis, city residents established several
                                                  river related industries on the land. In the early
                                                  1900’s the land was converted to farmland, and
                                                  eventually purchased by the City of Minneapolis
                                                  with the purposes of establishing an upper port
                                                  as the head of navigation.
Henry Lewis: Falls of St. Anthony, Source: MNHS
                                                  Since the 1960’s the UHT has operated as an
                                                  inter-modal barge shipping terminal. In the
                                                                                                       The park will be in the McKinley Neighborhood, about a quarter mile from the existing residential area,
                                                  following decades, the UHT and other riverfront
                                                                                                       and two miles form downtown. Many current residents will be within a ten minute walking range of the
                                                  areas were divided from the existing residential
                                                                                                       entryways to the UHT site at Dowling Avenue and 33rd Avenue, with an additional five minute walk to
                                                  neighborhoods by I-94; a barrier which exists
                                                                                                       reach the rivers edge and park land. The park will also have direct connections to the Camden Business
                                                  today. The freeway construction displaced
                                                                                                       District and North Mississippi Regional Park, although such connections cannot be completed without
                                                  many people from their homes and, along
                                                                                                       future land acquisition.
                                                  with the heavy industry, is a symbol of the
                                                  environmental injustice experienced by people        The UHT site is within the Above the Falls Regional Park and the Mississippi National River and
                                                  living in North Minneapolis.                         Recreation Area, one of the few urban National Park boundaries. Development within the park will be

St. Anthony Falls, Source: MNHS
                                                                                                       guided by several zoning districts: the Shoreland Overlay District, the Floodplain Overlay District, and
                                                  In 2015 the Army Corps of Engineers closed the
                                                                                                       the Mississippi River Corridor Critical Area.
                                                  St. Anthony Falls Lock which ended barge traffic
                                                  to the upper river and the City of Minneapolis       The river corridor is an international flyway for a host of wildlife and immediately upstream North
                                                  began a new phase of planning for the UHT.           Mississippi Regional Park includes acres of restored native vegetation. The UHT site, like much of the
                                                                                                       industrial land to the south, does not contain significant ecological cover. There is a large heron and
                                                                                                       egret rookery across the river and slightly downstream from the UHT.

                                                                                                       More information about the requirements and review processes and the land cover can be found in the
                                                                                                       AUAR document (link provided in the appendix).

The Destruction of Spirit Island, Source: MNHS

      10                                                                                                                                                                                                  11
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Introduction

Northside Green Zone and Promise Zone

The UHT property falls within the locally
                                                                                                                                                                                                                                                                                                                                                                                              Upper Ha
designated Northside Green Zone and                                                                                                                                                                                                                                                                                                                                                           Historic P
                                                                Upper Harbor                                                                                                                                                                                                                                                                                                                  Previous Studi
federally designated Promise Zone. The                       Terminal Location                                                                                                                                                                                                                                                                                                                - 2007 Upper Mississip
                                                                                                                                                                                                                                                                                                                                                                                              Architectural/Historica

Minneapolis Green zone is a place-based                                                                                                                                                                                                                                                                                                                                                       and Company)

                                                                                                                                                                                                                                                                                                                                                                                              - 2017 Intensive Archite

                                                                                                                                                                                                                Monolithic Domes                                                                                                                                                              Upper Harbor Termina

policy initiative aimed at improving health                                                                                                                                                                                                                                                                                                                                                   National Regis
                                                                                                                                                                                                                                                                                       Red Grain Elevator                                                                                     - Not listed in or deter

and supporting economic development                                                                                                                                                                                                                                                                                                                                                           Register of Historic Pla

                                                                                                                                                                                                                                                                                                                                                                                              - Entire UHT complex i
                                                                                                                                                  Overhead Conveyors                                                                                                                                                                                                                          listing in the NRHP as a

using environmentally conscious efforts in                                                                                                                                                                                                                                                                                                                                                    potential Upper Harbo

                                                                                                                                                                                                                                                                                                                                                                                              - Entire UHT complex i
                                                                                                                                                                                                                                                                                                                                                                                              eligible for listing in the

communities that face the cumulative effects                                                                                                                                                                                                                                                                    Grain Elevators                                                               Local Landmar
                                                                                                                                                                                                                                                                                                                                                                                              - No current local land

of environmental pollution, as well as social,                                                                                                                                                                                                                                                                                                                                                - Entire UHT complex i
                                                                                                                                                                                                                                                                                                                                                                                              local Minneapolis land

political, and economic vulnerability. Promise
                                                                                                                                                                                                                                                                                                                                                                                              Historic District

                                                                                                                                                                                                                                                                                                                                                                                              - Four Monolithic Dom
                                                                                                                                                                                                                                                                                                                                                                                              demolished) are recom

Zones are an economic development strategy
                                                                                                                                                                                                                                                                                                                                                                                              local Minneapolis land

                                                                                                                                                                                                                                                                                                                                                                                              Regulatory Re

intended to support low-income communities
                                                                                                                                                                                                                                                                                                                                                                                              - For the Public Park po
                                                                                                                                                                                                                                                                                                                                                                                              does not currently app
                                                                                                                                                                                                                                                                                                                                                                                              the project undertakin
                                                                                                                                           River Structures                                                                                                                                                                                                                                   permitting or funding.

throughout the country. There are many ways                                                                                                                                                                                                                                                                                                                                                   - The City of Minneap
                                                                                                                                                                                                                                                                                                                                                                                              an AUAR for the propo
                                                                                                                                                                                                                                                                                                                                                                                              venue at the site.

in which the park development aligns with the                                                               River Wall

goals of the two zones; converting blighted
industrial land and inaccessible riverfront to
public green space is a fundamental step.

                                                                                       Saint Anthony Pkwy
                                                                                                                                        l St
                                                                                                                                    shal
                                                                                                                              Mar
                                                                                                                         NE

Existing Conditions
                                                                                                                                                                                                                                                                                             Regulatory Process Overview

                                                                                  S aint Anthony Pkwy
The 48 acre UHT site consists of nine tax parcels, and is almost                 The eastern edge of the site is defined by the river, while the western edge    is
                                                                                                                                                            1. Identify Historic Properties
                                                                                                                                                                                                                                                                                                                                                                     Local
                                                                                                                                                                                                                                                                                                                                                                   Landmark

a mile long and approximately 500 feet wide for much of it’s                     largely bound by an active rail line. Two parcels are situated between the rail line                                                                                                                           Previous
                                                                                                                                                                                                                                                                                                Studies
                                                                                                                                                                                                                                                                                                                    City of
                                                                                                                                                                                                                                                                                                                  Minneapolis
                                                                                                                                                                                                                                                                                                                                      Minneapolis
                                                                                                                                                                                                                                                                                                                                         HPC
                                                                                                                                                                                                                                                                                                                                                    City Council

                                                                                                                                                                                                                                                               33rd Ave N
length. Concentrated along the riverwall and near the end                        and I-94 along Dowling Avenue, but the entire park area is between the rail line                                                                                                                            If UHT is designated a local landmark,
                                                                                                                                                                                                                                                                                                                                                                    No Local
                                                                                                                                                                                                                                                                                                                                                                   Designation

of Dowling Avenue, the site contains industrial structures                       and the river. Overhead electrical transmission lines bisect the site. Across2. the     river
                                                                                                                                                                 Design Review and Assessment of Effects

                                                                                                                                                                                                                                                                                                Concept

                                                                                 is the Xcel Energy plant, and the other surrounding land uses are mainly industrial.
                                                                                                                                                                                                                                                                                                                                                    Preliminary
                                                                                                                                                                                                                                                                                               Design and           City of           Minneapolis                        Public    Approved
                                                                                                                                                                                                                 Recommended UHT Historic District
linked to its function as a barging terminal. In addition to the
                                                                                                                                                                                                                                                                                                                                                     Approved
                                                                                                                                                                                                                                                                                               Assessment         Minneapolis            HPC                            Hearing     Design
                                                                                                                                                                                                                                       2nd St N                                                                                                       Design
                                                                                                                                     tN
                                                                                                                              1st S
                                                                                                                                                                                                                                                                                                of Effects

                                                                                                                                                   Dowling Ave N
                                                                                                                                                                                                                                                                                                              Review and Revisions

riverwall, the structures include two barge docks and mooring
                                                                                                                                                                                Washington Ave N

                                                                                 The overall character of the park site is industrial, outside of the structures it is
                                                                                                                                                                                                                                                                                             3. Mitigation (if required)
cells, three concrete storage domes (formerly four), a grain                     characterized by flat areas used§¨¦for storage or transport. The existing riverbank
                                                                                                                                                               4. Implementation of Design
                                                                                                                                                                                                                                                                            N 3rd St

elevator complex, a conveyor system, office and scale pit, and                   slopes are steep and composed largely of dredged materials and debris. There

                                                                                                                                                   Dowling Ave N

                                                                                                                                                                                                   36th Ave N

                                                                                                                                                                                                                      35th Ave N
many small support buildings and structures. There are not                       is little upland vegetation and the vegetation on the slopes are mainly stands
                                                                                                                                                                                                                                   4th St N

                                                                                 Upper        Harbor Terminal

                                                                                                                                                                                                                                                  34th Ave N
                                                                                                                                                                   37th Ave N
locally or nationally designated historic buildings, structures,                 of Siberian Ash and Buckthorn with some higher quality Cottonwood Trees near
archaeological sites, or traditional cultural properties within                  the waters edge. Environmental testing shows low amounts of soil contamination
the Upper Harbor Terminal site. The Upper Harbor Terminal                        with debris being the main component. Much of the debris is evident in the large
site has been identified as potentially eligible as a local City of              chunks of concrete across the site and along the rivers edge.
Minneapolis historic district. The City is further evaluating the
                                                                                 The Alternative Urban Areawide Review containers a much more extensive
site under local designation criteria.
                                                                                 summary of the UHT site and context; references can be found in the Appendix.

     12                                                                                                                                                                                                                                                                                                                                                                       13
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Planning Process

     Although the Upper Harbor Terminal has been the site of
     planning, visioning ,and speculation for decades, the current
     process began in 2015. In 2019, with a park boundary
     established by the city approved Upper Harbor Terminal
     Concept Plan, the two agencies branched into collaborative, but
     separately managed planning processes.

14                                                                     15
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Planning

Planning Process Timeline                                                                                                     Community Advisory Committee

                                                                                                                              The Community Advisory Committee (CAC) met
        2015 – 2017                    2017 – 2019                2019 – 2021                      2019 – 2021
                                                                                                                              17 times as a group and many members engaged
   UHT Pre-Planning                   Site Concept            City Development                     MPRB Park
                                                                                                                              outside of CAC meetings. CAC meetings included
      Engagement                        Planning                    Planning                        Planning
                                                                                                                              public participation and comment. While the CAC
 nj Raise awareness of            nj Bring community           nj Collaborative Planning       nj Community Advisory
                                                                                                                              served as a backbone for the planning work, the
   upcoming project               members to the site         Committee                       Committee
                                                                                                                              members were not asked to represent their particular
 nj Seek input into a search      nj Engage on more specific   nj Draft Coordinated Plan       nj Focus Groups and
                                                                                                                              demographic or to serve as the sole voice of the
   for a developer partner        park and development        and AUAR engagement             Outreach
                                  topics
                                                                                                                              community. The CAC was a deliberation group that
 nj Build community                                           nj Learning Tables              nj Public Art Master Plan
                                                                                                                              offered valuable input and insight based on their
   connections and inform        nj Create an overall
                                                             nj Public meetings,             nj Youth Prototype                 time, commitment, and longevity with the project.
   an engagement plan             concept and define a                                                                                                                               Throughout the process, CAC members felt
                                                              workshops, and                  Building
                                  park boundary                                                                               The two primary goals for the CAC were to              that the adjacent development was critical to
 nj Open houses,                                               outreach
                                                                                            nj Public meetings and
   attendance at meetings,       nj Project meetings,                                                                          recommend a concept plan for the overall park and      how the park would function. In January, the
                                                                                              workshop days
   outreach at events,            expanded site tours,                                                                        to prioritize what the first phase of improvements     CAC approved a series of recommendations to
   initial site tours, surveys    outreach at events, door
                                                                                                                              should be. CAC members made several key                the City’s Collaborative Planning Committee
                                  knocking, surveys
                                                                                                                              recommendations throughout the project, including      regarding the development impacts to
                                                                                  See Appendix for a more detailed timeline
                                                                                                                              a change to the park boundary early in the process.    the park. Some of the key concerns for
Engagement Approach                                                                                                           In addition to reviewing the community input           CAC members where around the adjacent
                                                                                                                              gathered, the CAC advised on a program model for       performance venue, and whether noise,
From 2015 – 2019 MPRB gathered substantial                   Believing that no single format works for all                    the park, draft park concepts, and an approach to      congestion, traffic, and queuing would prevent
public input on the future park. MPRB collected              people, staff continued engagement outside of                    balance the desire for park amenities with concerns    residents from fully using the park. CAC
thousands of comments through dozens of                      the CAC as well. In 2019 MPRB hired community                    about green gentrification and displacement.           members also felt that the park would largely
meetings and open houses, outreach events, site              liaisons to assist staff in meeting with under-                  Although community members provided valuable           serve the adjacent residences and businesses
tours, conversations in person, phone, or email,             represented community members and introduced                     feedback in response to initial draft concepts, the    and were concerned about who would live and
and hundreds of responses to online surveys.                 the project to existing work groups that could                   time did not seem right for a park design focused      work at the UHT. Members were concerned
Much of this early engagement was centered                   provide insight and expertise.                                   discussion and the project team transitioned to        that plans for transit, affordable housing, local
in outreach to connect with people where they                                                                                 address other concerns.                                jobs, and other community benefits would not
                                                             Juxtaposition Arts (JXTA) was an engagement
were at and encourage general awareness and                                                                                                                                          be implemented.
                                                             and creative partner throughout the process.
discussion.
                                                             As JXTA developed the Public Art Master Plan,
After such a widespread general engagement                   their team conducted many discussions and oral
                                                                                                                                                                                     “Adjacent development is important
effort, the project needed a place for ongoing and           interviews that contributed to the overall project
                                                                                                                                                                                     because it will greatly impact who uses
focused discussion. MPRB Commissioners and a                 engagement.                                                                                                             the park and whether current Northside
group of community stakeholders appointed a 17                                                                                                                                       residents and ADOS, Dakota, and other
member Community Advisory Committee (CAC)                                                                                                                                            BIPOC users feel connected with the park”
that met regularly for two years.
                                                                                                                                                                                     ―COMMUNITY ADVISORY COMMITTEE RECOMMENDATION

     16                                                                                                                                                                                                                       17
Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
Planning

                                                                                                              It is important to not oversimplify and frame
The CAC did not recommend design principles or a design as there was not consensus
on a primary project direction. Based on CAC input, staff identified three diverging                          the question around whether people want a
directions which are outlined below. Rather than vote on a recommendation, CAC
members elected to provide individual statements which are included in the Appendix.
                                                                                                              park or not. A choice between nice things or
Staff assessed CAC discussions and conclusions, along with the engagement from                                risking displacement is not really a choice.
other community members of the years, in order to make recommendations and
compile this document.

 1. Do not proceed with park         2. Proceed with cleaning up          3.Build just enough park         Although some CAC members were          Parks for All, the MPRB Comprehensive Plan project
 development at this time           the industrial site, restoring the    to allow the site to safely      uncertain about advancing the park,     was running concurrently with much of the UHT park
                                    land, and minimal circulation         function as a public place,      issues that were greater than any one   planning. Staff shared information, resources, and
 nj Developing a park will                                                                                                                          contacts between projects, and collaborated to link
   advance the adjacent             and improvements to make              attract Northside residents,     project impacted considerations about
                                                                                                                                                   work that was broad and systemwide with work at
   development and cause            a safe public space but do            and support deliberate           the UHT. Some CAC and community
                                                                                                                                                   the project specific level. Recommendations in this
   displacement or other            not proceed with further park         programming and staffing.        members felt that advancing the park    document are specifically for the UHT project; the
   negative impacts                 amenities                             Beyond basic improvements,       would serve the developers more than    Comprehensive Plan contains vision, values, goals, and
                                                                          focus on site clean-up and       Northside residents.                    strategies for the larger system.
 nj It is premature to develop       nj Maximize site clean-up and
   a park until more anti-            removal of industrial structures.   environmental restoration.
   displacement measures are          Maximize site clean-up and          nj Provide necessary
   in place                           removal of industrial structures.    infrastructure to support
 nj Conduct discussions with         nj Focus on environmental               engagement at the park,
   Dakota community leaders           healing by restoring the             as well as staffing and
   and members to offer the           land with vegetation,                programming.
   land back or leadership to         stormwater management, and          nj Physical improvements should
   determine the outcome of the       contaminated soil treatment.         be adequate and flexible
   project.                                                                enough to support commonly
                                    nj Provide minimal circulation
 nj Restart the park process to        such as a riverfront trail, and      requested experiences.
   allow for Northside community      necessary safety measures           nj Maximize site clean-up and
   leadership.                                                             environmental healing and
                                                                           land restoration.

                                                                          nj With dedicated budget
                                                                           continue work with Northside
                                                                           and Dakota community
                                                                           members on more detailed
                                                                           park development ideas

     18                                                                                                                                                                                            19
Planning

Community Build
                                                                       Goals of Site Furnishing                              Goals of Indigenous
                                                                         Prototype Project                              Architecture Prototype Project
Staff sought ways to continue engagement and bring
community voices deeper into the design and construction         nj Invest in local community                           nj Test a design, construction,
process. Particularly because gatherings and in-person             members and organizations                             engagement, and programming
work had been restricted due to the COVID-19 Pandemic,           nj Design site furnishings from                          process to deepen Indigenous
the team experimented with two new projects during the             widely available materials                            collaboration and engagement
summer of 2021. JXTA led one process to design and build                                                               nj Establish a process to bring
                                                                 nj Design site furnishings
several different types of prototype site furnishings for the      appropriate for youth                                 Green Team crews into
UHT. MPRB staff and Dakota team members led an internal            construction                                          construction projects with multi-
Green Team in learning about Indigenous architecture                                                                     faceted learning
                                                                 nj Create pathways for local
and practices and building a shade structure and other                                                                 nj Design structures from
                                                                   hiring to maintain and replace
small projects.                                                                                                          widely available materials
                                                                   furnishings
                                                                                                                         and appropriate for youth
                                                                 nj Testing the site furnishings before                   construction
                                                                   the actual project
                                                                                                                       nj Create pathways for local
                                                                 nj Further engagement through                            investment to maintain and
                                                                   design, construction, and testing                     replace shelters
                                                                   furniture in public places
                                                                                                                       nj Testing shade shelter prototype
                                                                 nj Create a brand for UHT and                            before the actual project
                                                                   other Northside parks with local
                                                                   design                                              nj Create unique architecture for
                                                                                                                         the UHT and other parks that
                                                                 nj Provide opportunities for team                        offer educational opportunities
                                                                   to work closely together for                          about Dakota land
                                                                   reciprocal learning

                                                                Juxtaposition Arts Enviro Studio
                                                                designing and building models for
                                                                                                         Indigenous Architecture Green Team learning about Dakota architecture and practices and
                                                                benches, tables and chairs, picnic
                                                                                                         building a sample shade structure
                                                                furnishings, and lounge chairs.

    20                                                                                                                                                                                             21
Project Vision

                                                                                         “Welcome to North Minneapolis” Mural by Charles Caldwell

                                                   The Promise and the Challenge of New Parkland

                                                   Northside residents clearly expressed a
                                                   desire for access to the river, public green
                                                   space, and positive investment in their
                                                   community during the 2011 – 2019 planning
                                                   processes. The benefits of new park space,
                                                   transforming the current industrial land              The park at the UHT
                                                   to an environmentally rich river corridor,
                                                   and addressing a serious recreational
                                                                                                        could address existing
                                                   deficiency have captured the attention                disparities, or could
                                                   and imagination of many people.
                                                                                                          worsen them if it
                                                   However, the reality of implementing
                                                                                                         contributes to rapid
                                                   significant new park amenities is more
                                                   complex. As land prices and the cost of            cultural change and rising
                                                   living rises, well justified concerns about         land prices that displace
                                                   gentrification and displacement have
RiverFirst and Above the Falls Key Findings:       grown as well. People are concerned about              current residents
                                                   financial and physical displacement, but
nj People want to EXPERIENCE and ACCESS the river
                                                   also about cultural gentrification and the
nj People want to RESTORE and IMPROVE the river     loss of the Northside identity to wealthier
                                                   and Whiter residents.
nj People want EQUITABLE DEVELOPMENT

  22                                                                                                                                                23
Vision

Although the UHT property is the largest tract of
City owned land up for redevelopment, it is housed       Definition of Gentrification:
in a much larger area between the I-94 and the            Refers to the modification of a neighborhood,
river that is poised for change. There is potential      typically due to an increase in “desirability”.
to alleviate existing disparities; but the possibility   This change often brings increased property
that it will exacerbate them is real and profound.       values, new and different businesses to the
                                                         area, and may be signaled by storefront
Because this area, including the UHT is divided
                                                         renovations, public works projects, or
from the existing residential areas by the freeway,
                                                         neighborhood “rebranding”. However, the
the risk is heightened that the land could develop       increased wealth and economic gains are
a new identity with little relationship to the current   not experienced equally be all residents.
residents.                                               New residents are more likely to benefit while
                                                         existing residents are disproportionately
These concerns are a critical factor in shaping
                                                         burdened with increased property taxes, and
recommendations for the park. It is important that       prices of food and necessities.
MPRB consider the park in the context of larger
forces in the area. It is important to understand,
that investment, even in amenities that are truly
wanted, may not be beneficial to community               Definition of Displacement:
members who are vulnerable to negative impacts            Refers to the forced relocation of a household
of change.                                               FROM a neighborhood for reasons beyond
                                                         their control. Large-scale displacement across
Throughout the engagement period community
                                                         a neighborhood can change the community
members expressed a range of hopes, concerns,
                                                         demographically, economically, physically,
and desires for the park. This vision section            and socially.
organizes the key findings into Values and a
Program Model. From the values that must guide all              ―From MPRB Comprehensive Plan Draft
decisions made, for park experiences and design,
these recommendations offer a touchstone on how
this park can fulfill its promise.

                                                                                                               “How do we make sure that the UHT really feels like a part the
                                                                                                             Northside? We want people to come to the UHT and have a good
                                                                                                           introduction to the Northside and the river, and not think that this is a
                                                                                                            part of Downtown coming up the river or Northeast coming across.”

                                                                                                                                                                     ―NORTHSIDE RESIDENT

     24                                                                                                                                                                         25
Vision

Values                                                                                   1. Slow Down the Process and allow for the park to evolve once more is known about the
                                                                                         Development of the larger area and how Northside community members are connecting with
Values guide the way MPRB approaches work         “Adjacent development is               the park.
and are a basis to evaluate future decisions.     important because it will greatly      The needs of Northside residents should drive the park design. Decades of systemic racism has led to a lack
Tactics and strategies change over time, but
                                                  impact who uses the park and           of trust and there is tremendous uncertainly about the future of the area and who the park will serve. It is
holding these values close helps staff ground a                                          premature to map out a long term plan; the park should be a place to experiment and adjust as needed.
project or process in the core mission defined
                                                  whether current Northside
through extensive engagement.                     residents and ADOS, Dakota, and        a. Develop the park with the Just Green Enough or Slow Park approach with
                                                                                                                                                                           For the purposes of this project
                                                  other BIPOC users feel connected          a focus on local community needs. →
                                                                                                                                                                           “just green enough” is a space
                                                  with the park”                         b. Maintain a Slow Park approach until it is better understood how the            that serves the surrounding
                                                                                            adjacent development will be designed, implemented, and operated.              community first and foremost
  1. Slow down the process of park
                                                                                               ‒ Allow for future options that allow MPRB to work with the City should     and seeks to reduce the risks
     development and allow for the park                         ―COMMUNITY ADVISORY                                                                                        of displacement or lack of
                                                            COMMITTEE RECOMMENDATION
                                                                                                  they wish to explore alternatives to a privately operated multi-
     to evolve once more is known about                                                                                                                                    ownership by current Northside
                                                                                                  thousand seat venue including options determined to be appropriate
     the adjacent development and how                                                                                                                                      residents. A park that is “just
                                                                                                  in a public park. Noise, traffic, congestion, and crowds from the
     Northside community members are                                                                                                                                       green enough” is not intended
                                                                                                  Community Performing Arts Center may impact use of the park.*
                                                                                                                                                                           to mean either disinvestment
     connecting with the park.
                                                                                               ‒ The park should prioritize support for people living in deeply            in a community or a low-
  2. Prioritize park investments in people                                                       affordable housing and current Northside residents. The design and        quality park or a low amount
                                                                                                 operation of the park should respond to who lives in the proposed         of green, vegetated space.
     over infrastructure as a strategy
                                                                                                 housing in the adjacent development.*                                     Beginning with more basic
     to combat gentrification and                                                                                                                                          improvements is also known as
     displacement                                                                              ‒ The park should be supportive of businesses that are owned and            the Slow Park movement and is
                                                                                                 operated by Northside residents, that employ Northside residents, and     an evolving strategy to combat
  3. Maximize community options and
                                                                                                 that have positive synergy with the park. The design and function of      gentrification resulting from
     control over park development                                                               the park should respond to who owns and works in businesses in the        green space development.
     by investing only in basic, flexible,                                                       adjacent development.*                                                    Slowing the rate of change,
     and generally reversible park                                                                                                                                         particularly if combined
                                                                                         c. Continue collaboration with the City, developers, and other partners to
     improvements.                                                                                                                                                         with efforts to build local
                                                                                            achieve community goals.                                                       connections, can help avoid
  4. Define this park as a Northside place                                               d. Maintain a Slow Park approach until there is a better understanding of         cultural gentrification. When
     and for the people by honoring and                                                     how the larger area between the freeway and river may be changing.             creating a new park, starting
                                                                                                                                                                           with just enough features to
     celebrating Northside people in multi-                                              e. Maintain a Slow Park approach until current residents are comfortable          support local use, allows the
     layered ways                                                                           that displacement is not a high imminent risk.                                 park users to help shape more
  5. Actively program and staff the park to                                              f. Maintain a Slow Park approach until transportation barriers can be             of the space after they’ve
                                                                                                                                                                           gotten to know it. Future
     build ownership, provide supportive                                                    addressed at each stage of park implementation.
                                                                                                                                                                           park development could be
     jobs and capacity building for               “The Upper Harbor Terminal is          g. Keep the park flexible and basic so that the park future is undetermined       deferred unless community
     Northside community members.                 not the first project to articulate       and not a basis for speculative real estate investment.                        members feel improvements

  6. Address larger issues that may               community goals. Many projects                                                                                           will not add to the risk of
                                                                                                                                                                           gentrification.
     be outside of the immediate UHT              set goals and make promises and        *Edited from CAC Recommendation to CPC, see Appendix for full list.
                                                                                         See land use coordination section for more CAC Recommendations.
     boundary, but impact work at this            then do not deliver.”
     park and elsewhere in the system.
                                                                   ―NORTHSIDE RESIDENT

    26                                                                                                                                                                                            27
Vision

2. Prioritize Park Investments in People Over Infrastructure as a strategy to combat                                3. Maximize Community Options and Control
gentrification and displacement.                                                                                    a. Approach park construction and

Developing, building, and operating the park itself should be part of a larger strategy to                                         Environmental
                                                                                                                       funding so that the first phase of

                                                                                                                       of engagementjustice
                                                                                                                                     rather than eyes
                                                                                                                       park improvements is continuation
build wealth and career driving skills for Northside residents. Creating the park at the
                                                                                                                                                 an end.
                                                                                                                                                                                                               Sculpture       +         Murals
UHT is not the end goal; the park and related work should be a step toward addressing
                                                                                                                       Seek opportunities for people and
the existing racial inequities. These disparities are not limited to access to recreation
                                                                                                                       organizations to help build the park
and nature, but include income inequality, safety, career opportunities. The following                                                The Northside community to
                                                                                                                                                              has done a
                                                                                                                       as a more collaborative    approach
                                                                                                                                         huge amount of organizing to reduce
tactics should be integrated into the park as a way to prioritize investment in people over                                         the pollution that the community is ex-
                                                                                                                       community involvement.
investments in infrastructure:                                                                                                           posed to, and to open up the riverfront.
                                                                                                                    b. Develop the park      support
                                                                                                                                    Publictoart at Upper   Harbor could ac-
a. Create a job, career, and training intensive park, rather than                                                                    knowledge this organizing, and tell
                                                                                                                       goals already defined     by relevant
                                                                                                                                     people about the work that’s still un-
  a park designed for leisure with expensive physical amenities.
                                                                                                                                     derway. It could
                                                                                                                       community led processes such    also be
                                                                                                                                                             asa the
                                                                                                                                                                 reminder to
                                                                                                                                     nearby industry that the community is
b. Maximize investment in the North Minneapolis community                                                                            paying
                                                                                                                       Northside Green  Zoneattention.
                                                                                                                                                and Promise
  during the implementation process. Encourage Northside                      “Northside people absolutely             Zone.             •   Symbolically saying to the polluters
                                                                                                                                                                                                                                   Right here is where you can start to turn
                                                                                                                                             in the area, “We’re watching you.”
  business and organization participation, and provide                        deserve a nice neighborhood.          c. First phase improvements    shouldto be
                                                                                                                                                                                                                                   it around. But you got to acknowledge
                                                                                                                                                                                                                                   the past. You got to acknowledge
                                                                                                                                     • Bringing awareness    the            fight
  opportunities for participants to build skills. Find opportunities                                                                                                                                                               those pains, those things that have
                                                                              But if you start by investing in                       against environmental injustice
                                                                                                                       adaptable. Communicate     promises for
                                                                                                                                     the Northside.
                                                                                                                                                                               on
                                                                                                                                                                                                                                   happened, those injustices in order to
  to create cradle to career pathways through a variety of tools                                                                                                                                                                   know what not to do again.
                                                                                                                       future actions into the park as a public
  including mentorship and capacity building opportunities.                   the physical realm and not in                              •   An opportunity to make a perma-                                                             - Princess Haley
                                                                                                                                       nent monument on the land that has
                                                                                                                       accountability measure.
c. Leverage the construction process to establish a connection                the people, they may never be                                  and is being fought for.

                                                                                                                    d. Revisit full park concept design after                         Untitled, J.R.
  to the park before it opens.
                                                                              able to enjoy it.”                       community members can experiment in                          JXTA Public Art idea of Environmental Justice
                                                                                              ―NORTHSIDE RESIDENT      initial park spaces. If the goals for the                    Eyes symbolically watching
                                                                                                                                                                                                                           Upper Harbor Terminal Park // Public art plan   22

                                                                                                                       park are not being met, modify park
                                                                                                                       design and/or operations.

                                                                                                                                                                                    “With the Green Zones we’ve done a lot of work to
                                                                                                                                                                                    say what we want for environmental justice on the
                                                                                                                                                                                    Northside. We don’t want to restate these goals.
                                                                                                                                                                                    What we need is for every project that happens to
                                                                                                                                                                                    support these goals.”
                                                                                                                                                                                                         ―NORTHSIDE GREEN ZONE TASK FORCE MEMBER

     28                                                                                                                                                                                                                                                              29
Vision

4. Define this Park as a Northside Place and for the People

While Minneapolis is on track to become majority BIPOC (Black,
Indigenous, People of Color) by 2040, the North Minneapolis
                                                                                                                                                                                                                                                                  The industry has divided the Northside     Juxtaposition Arts Northside Storylines
                                                                                                                                                                                                                                                                  people from the River and left a legacy
neighborhoods have long been home to diverse communities.
                                                                                                                                                                                                                                                                  of pollution and pain. The industry
Having the UHT park be a place welcoming to all, where all
                                                                                                                                                                                                                                                                  should not be erased from memory
                                                                                                                                                                                                                                                                                                            1. Histories of ecological harm and disconnection
communities can learn about Dakota land and Black culture, as                                                                                                                                                                                                     or celebrated; the decades of work          from this place – The River has been altered to
well as the Indigenous, Southeast Asian, African, and Latinx and                                                                                                                                                                                                  by Northside people for environmen-         benefit settlers, businesses and industry. The river
many different people that call North Minneapolis home means                                                                                                                                                                                                      tal justice and the re-greening of the      has the power to heal our communities but first we
balancing diverse voices and activities.                                                                                                                                                                                                                          space is what should be celebrated.         need connection

                                                                                                                                                                                                                                                                                                            2. Environmental justice work and vision - Industry
a. This park should honor and acknowledge the Dakota and                                  K AT                                                                         WE HAVE DIVERSE AND CHANGING                                                              d. Celebrate the diversity of the            has polluted the water, soil and air. As community
                                                                                 R E PA R          M IN A L
                                                                         A FUTU ARBOR TER
                                                                                                                                                                       DEFINITIONS OF SAFETY

  Indigenous people through active support of Indigenous                 UPP E R H
                                                                                             A Black centered Listening Session,
                                                                                                                        led by Juxtaposition Arts
                                                                                                                                                                       OUR FEELINGS OF SAFETY ARE OFTEN BASED ON OUR PAST EXPERIENCES AND
                                                                                                                                                                       PERCEPTION OF THE WORLD. WE ALSO HAVE VARIED APPROACHES TO HOW WE
                                                                                                                                                                       DEAL WITH FEELING UNSAFE.
                                                                                                                                                                                                                                                                   Northside residents.                       organizing forces polluters to change and move
                                                                                                                                                                       “Safety is a freedom to     “For me, it’s like listening   “There’s a big difference

  voices, practices and treaty rights. Move beyond art and
                                                                          In July 2020, Juxtaposition Arts hosted a listening session with Black Northsiders           imagine... and to try       to my intuition and            between being a black

                                                                                                                                                                                                                                                                                                              out, it’s critical that the Northside community is at
                                                                          including youth, adults and elders, as part of the engagement process for the future         new things. I think the     my ancestors that keep         man or a darker skinned

                                                                                                                                                                                                                                                                 e. Dedicate budget to embed art and
                                                                          public park at Upper Harbor Terminal.                                                        world is bigger when I’m    me safe. So not like a         woman and a light
                                                                                                                                                                       safe. Safety to me also     material thing, but more       skinned woman. It’s not
                                                                          Prompted by conversations at the Community Advisory Committee and current events             means clear and careful     of like a spiritual thing.”    the same, there’s different
                                                                          related to public parks, we were looking to find out more about what would make a park

  signage to and work with Dakota people to create places for
                                                                                                                                                                       communication with                                         levels.”
                                                                          at Upper Harbor Terminal a Safe, Inviting and Relevant resource for Black Northsideers.      other people.”

                                                                                                                                                                                                                                                                                                              the table to envision and drive what is next.
                                                                                                                                                                                                   “A place where you know        “A place where white

                                                                                                                                                                                                                                                                   expression into the park to support
                                                                          Here are the themes and ideas we heard.                                                                                  your kids can be safe and      people don’t have assumed
                                                                                                                                                                       “We have been led to
                                                                                                                                                                       believe that fear is at     you don’t have to worry        authority to police you.”
                                                                           WE CAN USE DESIGN & AESTHETICS TO                                                           the forefront as Black      about them.”

  access, gathering, and harvesting, and support education,                FOSTER BLACK CULTURE IN THE PARK                                                            people.”

                                                                           THE FEELING CREATED THROUGH THE DESIGN OF THE PARK CAN GREATLY AFFECT
                                                                                                                                                                       WE WANT TO SEE BLACK PEOPLE IN
                                                                                                                                                                                                                                                                   artists and create a strong sense of
                                                                                                                                                                                                                                                                                                            3. Appropriation and re-appropriation of this place
                                                                           HOW THE PARK IS USED AND HOW PEOPLE FEEL WHEN IN IT. THIS IS A CHANCE
                                                                           FOR BLACK CREATIVES TO SHAPE OUR LANDSCAPE. AND AT THE SAME TIME,                           LEADRSHIP ROLES

  language, and Indigenous land management and cultural
                                                                           WHO COMES TO THE PARK WILL ALSO SHAPE HOW IT FEELS.
                                                                                                                                                                       WE RECOGNIZE THE IMPORTANCE OF DECISION MAKING POWER BEING IN

                                                                                                                                                                                                                                                                   ownership and belonging.
                                                                           “Why should we stop at         “There’s an intention          “The people who are there     BLACK HANDS. THE RECOURCES OF THE PARK WOULD BE MORE ACCESSIBLE IF
                                                                           Minnehaha-esque design         that we set to make this       are more important than       THEY WERE FACILITATED BY BLACK PEOPLE.

                                                                                                                                                                                                                                                                                                              – Local graffiti artists began using the domes
                                                                           when perhaps we could go       a space about healing          the aesthetic for making it
                                                                           further?”                      and peace. And that            feel like a Black space.”     “Not having traditionally     “I live next to a park         “As we think about

  practices.                                                                                              also flows through the
                                                                                                          way that we do design,
                                                                                                          the way we design
                                                                                                          the aesthetic, and the
                                                                                                                                         “It would look nice, and
                                                                                                                                         colorful like a nice green
                                                                                                                                         tropical rain forest and
                                                                                                                                                                       white lead orgs at the
                                                                                                                                                                       forefront pushing
                                                                                                                                                                       programs and what the
                                                                                                                                                                       space should be.”
                                                                                                                                                                                                     with 80% Black staff…
                                                                                                                                                                                                     but all the leadership
                                                                                                                                                                                                     is White. Having Black
                                                                                                                                                                                                     people picking up trash
                                                                                                                                                                                                                                    staffing the park one
                                                                                                                                                                                                                                    of the things that I’m
                                                                                                                                                                                                                                    saying is that we have to
                                                                                                                                                                                                                                    develop a pipeline that
                                                                                                          way that we bring this
                                                                                                          forward and in the park
                                                                                                          is just one piece of it.”
                                                                                                                                         see lots of pretty black
                                                                                                                                         woman and men having
                                                                                                                                         pretty colors on them.”
                                                                                                                                                                                                     while answering to
                                                                                                                                                                                                     Whiteness doesn’t sound
                                                                                                                                                                                                     “good” to me.”
                                                                                                                                                                                                                                    will create the leaders in
                                                                                                                                                                                                                                    those parks.”
                                                                                                                                                                                                                                                                 f. Use the five Northside Storylines         and other structures as canvases, redesigning the
b. This park should be a Black Space and all who come to the
                                                                                                                                                                                                                                                                   defined by Juxtaposition Arts during       area as an outdoor gallery. This DIY approach to
  park should be aware that this is a place that celebrates and
                                                                                                                                                                                                                                                                   the Public Art Master Planning Process     placemaking turned Upper Harbor Terminal into
  supports Black lives. There are many ways to reinforce the idea
                                                                                                                                                                                                                                                                   as a guide to which stories should be
  of Black space from envisioning a place where art, music, and
                                                                        Full summary of the UHT listening session                                                                                                                                                                                             place known by artists.
                                                                        conducted by JXTA is found in the appendix                                                                                                                                                 promoted. →
  culture are nourished, to a safe and green refuge from other life                                                                                                                                                                                                                                         4. Settlement history of the Northside The
  stresses, to an economically supportive park.                                                                                                                                                                                                                                                               Northside is defined by resilient people who came
c. Name the park something that is meaningful to both North                                                                                                                                                                                                                                                   together from different historical traumas. This
  Minneapolis residents and Dakota people. Conduct a name                                                                                                                                                                                                                                                     revolutionary community, defined by our victories
  exploration process that engages the Northside community                                                                                                                                                                                                                                                    as much as our struggles, shares this history. Now
  members and Dakota people.                                                                                                                                                                                                                                                                                  we have a new generation who is creating a new
                                                                                                                                                                                                                                                                                                              vision and reality.

                                                  One example that arose repeatedly was the different                                                                                                                                                                                                       5. Food sovereignty in Black, Native and POC
                                                  relationships distinct cultural groups had with water and                                                                                                                                                                                                   communities - A movement of growers and chefs,
                                                  the river. While water is sacred in all cultures, expressing its                                                                                                                                                                                            gardeners and organizers, entrepreneurs and
“This park should have something                  centrality to life varies widely. For some community members,                                                                                                                                                                                               non-profits are working against a lack of access to
to represent each culture and                     the Mississippi River is a well-known and loved, others have
ethnic group”                                                                                                                                                                                                                                                                                                 fresh and healthy foods. UHT has the potential to
                                                  had little opportunity or access to this or any similar water
                                                                                                                                                                                                                                                                                                              amplify Northside food justice efforts.
            ―LAO FOCUS GROUP COMMUNITY MEMBER     body. Building relationships and getting to know the array of
                                                  programmatic interests and support needed is essential;
                                                  the park must support tailored and varied methods.

     30                                                                                                                                                                                                                                                                                                                                                        31
Vision

5. Actively Program and Staff the Park to connect residents, build ownership, and provide
supportive jobs and capacity building.

Because the UHT is an unknown space and disconnected physically from the
neighborhood, it is essential to intentionally create ownership and connections with
Northside residents.

a. Activate the park with appropriate and supportive
  programming. Provide programming where people an enjoy
  the park without significant capital and equipment and
  provide options for public use. Create an atmosphere where
  people are welcomed without spending money. When there
  are opportunities to purchase food or materials at the park,
  encourage Northside entrepreneurs to seek participation.

b. Use employment as a tool to activate and care for the
  park, invest in the community, and teach skills related to the
  river, ecological areas, green infrastructure, and recreation.
  Encourage Northside and BIPOC community members to seek
  employment with MPRB and other partners.

c. Provide supportive and intentional programming to support
  activities that are typically enjoyed by White users, such as
  watercraft recreation.. Encourage Northside and BIPOC
  community members involvement and skill building.
                                                                                                                                                                Draft Design Concepts from May 2020
d. Emphasize positive park activation through programming
  and employment and partnerships as a security mechanism,
  rather than traditional policing.                                                               Community members often expressed diverging visions for the park,
                                                                                                  from a green and nature based area, to a more active park with
                                                                                                  recreational amenities, to a more urban character. The park can
                                                                                                  still evolve into any of these directions and be a destination area it
                                                                                                  becomes clear that substantial new improvements are desired.

“We need an investment in programming and connective work
that is as committed as the infrastructure development.”
                                                      ―BLACK OUTDOOR AND ACTIVE LIVING ADVOCATE

     32                                                                                                                                                                                  33
Vision

Program Model

The Program Model translates the activities and                                                                       During engagement the team assessed how key categories of park users,
experiences desired for a public space into physical                                                                  including children, teens, seniors, individual users, people in groups, and
                                                                        A Program Model serves
                                                                                                                      organizations, might interact with the park. The resulting list of ten key
design and capital investments that support those                        three major functions:
                                                                                                                      experiences includes information on how the physical park features can be
experiences. The Program Model is the basis for
                                                                nj Guidance around experiences the                     tailored to support community needs and desires.
design work, while recreational programming is the
cadence of activities that occur in a park over time
                                                                  residents want that should be delivered             1.   Connect with the River: View, walk or sit by the water, touch water,         The water access
                                                                  through park design and programming.                     access with watercraft.
and follows park implementation.                                                                                                                                                                        should not be
                                                                nj Assessment tool for evaluation of current           2. Hold Large Events: Festivals, performances, movies, neighborhood
The project team organized the desired activities                                                                        socials. Having cultural and local events on the river can support             a repeat of the
                                                                  and any future design concepts.
and experiences for the park into categories that                                                                        Northside organizations and people, introduce residents to the park,           Camden boat
could begin to inform the physical spaces. These                nj Guidance on shaping staffing, events,                  and add to the sense of Northside ownership.
                                                                  activities, and temporary structures
                                                                                                                                                                                                        launch and needs
activities ranged across wide spectrums and                                                                           3. Hold Small Gatherings and Events: Family gatherings, picnics, art
sometimes competed, from individual to group                      within the park once it is open.                       shows, classes, barbecues.                                                     to be supported
activities, to active and passive recreation.                                                                         4. Buy, Enjoy, Harvest Food: Grow food, take classes, cook outside,               by staff in a
                                                                                                                         purchase food, attend a market. Food can be intertwined with public
                                                                                                                                                                                                        central and
                                                                                                                         spaces in many ways, and the park can contribute toward food justice
                                                                                                                         and a more local system.                                                       active location.
                                                                                                                      5. Relax in Nature: Quiet places within natural landscapes to walk, sit,
                                                                                                                         view the river. The park should have continuous natural areas large
                                                                                                                         enough to allow visitors to escape the hustle and bustle of the city
                                                                                                                      6. Learning and Education: Outdoor or indoor classes and skill building,
                                                                                                                         educational signage, programs focused on food, ecology, and culture.
                                                                                                                      7. Visitor Support: Drink water, shelter from weather, find bathrooms, staff
                                                                                                                         support, places to sit, adequate parking.
                                                                                                                      8. Intergenerational Play: Playground, free play, pop up games, events for
                                                                                                                         all ages to enjoy.
                                                                                                                      9. Winter Activities: Ice skating, sledding, winter classes, sit around a fire,
                                                                                                                         indoor activities for enjoyment year round
                                                                                                                      10. Movement and Exercise: Support activity and sport areas, fitness
                                                                                                                          classes, places for active play, running and biking.

                                                Top requests for the park space organized by the Program Model team

     34                                                                                                                                                                                                            35
Vision

Park Design Principles

Park design principles provide            1. Maximize site clean-up and removal of industrial         7. Embed art and expression into the park with
specific direction on park amenities,     structures that take up significant space.                  dedicated budget to support artists and create a strong
design, or layout. Based on the public
                                                                                                      sense of ownership and belonging by Northside
engagement process, the Vision            2. Focus on environmental healing: restore the land with
                                                                                                      community members.
statements, the program model, and        native and ecologically rich vegetation, manage
the story lines developed by JXTA,        stormwater to protect the river, clean contaminated soil,   8.Acknowledge Dakota land and support Dakota and
the first set of park design principles   use green and renewable materials, and mitigate climate     Indigenous people in visible ways through interpretation,
provide more specific guidance on park
                                          change.                                                     design, gardens, areas to gather and harvest, outdoor
space design and development:
                                                                                                      learning areas, and visible incorporation of language,
                                          3. Provide critical visitor support, such as restrooms,
                                                                                                      and cultural practices.
                                          drinking water, lights, seating, wayfinding signage,
                                          shade, parking, and shelter. Because UHT is in a            9. Plan for evolution with community use: use mobile
                                          somewhat isolated area, basic support is critical for any   and flexible methods to provide amenities where possible
                                          significant park use, especially if people use transit to   and plan on future adjustments to spaces.
                                          access the site.
                                                                                                      a. Allow for a variety of indoor park space options,
                                          4. Support commonly requested experiences with picnic         including the potential for public park space on the
                                          areas, accessible water access, flexible lawn area, play,     ground floor of an adjacent development parcel.
                                          and seating, walking, and gardens.                            Provide basic indoor space with mobile and movable

                                          5. Support programming and activation including               buildings as both the need and the options for future

                                          flexible accessible (paved) areas, flexible lawn space,       building space become clear.
                                                                                                                                                                  “The park should
                                                                                                                                                                  help shape the future.
                                          multipurpose indoor space, and infrastructure such as       b. Allow for future removal of the river wall and
                                          storage, lights, outlets, and water. With programming,        restoration of an ecological edge. Do not place
                                          MPRB and other organizations can help bridge awareness        significant permanent structures, such as a building,     This is an important
                                          and transportation gaps as well as invest into the people     that would deter future options to change the wall.       connection to the river
                                          and connect them to the park through paid work.
                                                                                                      c. Utilize mobile furnishings, such as a mobile stage       and an opportunity to
                                          6. Support robust staffing and capacity building with         to test out performance events. Allow for the
                                          green infrastructure working areas, gardens and
                                                                                                                                                                  support our claim to
                                                                                                        addition of a permanent outdoor performance area,
                                          stormwater management designed for staff training,            particularly if the adjacent venue should change.         this space.”
                                          indoor and outdoor staff storage, and staff office                                                                              ―NORTHSIDE RESIDENT
                                          touchdown areas.

     36                                                                                                                                                                                37
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